TO MEMBERS TO THE COMMITTEE ON GROUNDS AND BUILDINGS: DISCUSSION ITEM UNIVERSITY SEISMIC SAFETY POLICY AND UPDATE ON PROGRAM FOR SEISMIC IMPROVEMENTS
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1 Office of the President GB3 TO MEMBERS TO THE COMMITTEE ON : For Meeting of DISCUSSION ITEM UNIVERSITY SEISMIC SAFETY POLICY AND UPDATE ON PROGRAM FOR SEISMIC IMPROVEMENTS EXECUTIVE SUMMARY This discussion item provides an overview of the University s Seismic Safety Policy, and a report on the progress in evaluating seismic performance of University facilities and plans for addressing seismic deficiencies. BACKGROUND The University of California first approved a Seismic Safety Policy in Over the same period, the University has achieved significant improvement in the seismic safety of UC buildings and facilities, and adopted several updates to the UC Seismic Safety Policy. In the same timeframe, California has experienced several significant seismic events affecting the engineering and design for seismic resistance in structures in California. Both the California Building Code (CBC) and the UC Seismic Safety Policy have been updated in response to these events and changes in structural design practices. The University of California has a long-term commitment to seismic safety and significant progress has been made towards the formidable goal of improving the seismic safety of our buildings. Consistent with the Regents direction that seismic safety be accorded high priority, major structural corrections and minor non-structural improvements (to emergency response systems, corrections of falling hazards, etc.) have been completed at each of the University s campuses, with the exception of the Merced campus and its new buildings. Seismic corrections have been included in the University s annual capital program on a continuing basis. The UC earthquake safety program was triggered by the 1971 San Fernando earthquake. A Presidential Policy was adopted in 1975 that called for acceptable levels of seismic safety. In 1978, H.J. Degenkolb Associates conducted a survey of University facilities and categorized them by their relative life-safety risk. The review was based on a seismic hazard identification and a prioritization methodology developed by the University in cooperation with Degenkolb engineers. Buildings were given an earthquake performance rating of Good, Fair, Poor, Very Poor,
2 COMMITTEE ON -2- GB3 representing relative life safety risk assessments during a major seismic event. That review serves as the baseline for the University s seismic rehabilitation planning. Initial ratings assigned by this method were confirmed or revised as additional detailed structural studies were performed. Following the Northridge earthquake of 1994 and the subsequent Kobe earthquake of 1995, the University re-evaluated many of its facilities based on an evolved understanding of earthquake forces which, by 1997, had resulted in significant changes in structural design codes and practices. Pursuant to the UC Seismic Safety Policy, the Office of the President worked with campuses to prepare interim use plans for any buildings rated Poor or Very Poor. Interim use plans provided a plan for use of the subject buildings, including the length of time, until the buildings could be retrofitted, replaced, or abandoned. There are no CBC or other legislated requirements that mandate seismic retrofitting for any currently occupied UC buildings. Seismic Safety Policy The University of California adopted an updated Seismic Safety Policy on August 25, (See at This Policy consolidates three (3) existing policies and modifies the UC Earthquake Performance Levels for Existing Buildings so that they are consistent with the rating levels referenced by the CBC and State agencies. The three (3) policies that are now consolidated include: (i) the UC Seismic Safety Policy; (ii) the Policy for Independent Review of Capital Projects; and, (iii) the Seismic Safety Policy for Leased and Purchased Facilities. The Policy states in part that: The University shall lease, license, acquire, build, maintain, repair and rehabilitate buildings and other facilities to provide an acceptable level of earthquake safety for students, employees, and the public who occupy those buildings and other facilities, to the maximum extent feasible by present earthquake engineering practice and University resources, at all locations where University operations and activities occur within the United States. Feasibility shall be determined by weighing practicality and the cost of protective measures against severity and probability of injury resulting from seismic occurrences. The updated Seismic Safety Policy provides a consolidated framework for ongoing evaluation and rehabilitation of existing facilities that is consistent with the CBC and with other California agencies. The Seismic Safety Policy applies to new construction, existing buildings, renovation and facilities to be acquired or occupied through lease, license, or purchase.
3 COMMITTEE ON -3- GB3 Modifications to Seismic Evaluation Methodology and Ratings Under the previous UC Seismic Safety Policy, buildings were given an earthquake performance level of Good, Fair, Poor, Very Poor. Consistent with the CBC, Chapter 34, the updated Policy replaced the former taxonomy of Good, Fair, Poor, Very Poor with a numerical system. Building seismic ratings are now assigned with roman numerals from I to VII. While the former rating of Poor would generally approximate a new rating of V, the new ratings are based on specific performance levels while the former ratings were more qualitative in nature. Ratings I and II are reserved for essential facilities, such as inpatient hospitals, fire and police stations, and for some facilities that pose a significant risk to the public because of the hazardous materials housed therein. The ratings are also referred to as earthquake damageability levels and are based on a professional assessment of the building s expected seismic performance as measured by the referenced technical standard and earthquake ground motions. These ratings are also used by the California State University, the California Department of General Services, and the California Administrative Office of the Courts. The new rating system provides better-defined methods for evaluating seismic safety of buildings. This protocol requires a more thorough method of calculation and is more expensive to complete than previous methods of evaluation. The CBC applies to a building that met applicable code requirements at the time of construction or modification. As the CBC standard changes, it does not require modifying the building to comply with the new code requirements unless any proposed alterations are sufficient to trigger code retrofit requirements. CBC Section 3417: Earthquake Evaluation and Design for Retrofit of Existing Buildings applies whenever the structure is to be retrofitted, repaired or modified, and any one of several triggering conditions applies. These conditions include cumulative costs of renovation, change of use, or reductions in structural capacity. The CBC requirements are useful in providing a timely review of a building s seismic safety when projects are anticipated and funded. Generally, seismic improvements can be more easily incorporated into larger projects. But it is important to note that once a building is occupied, it takes a proposal to physically modify or repair damage above the threshold value to cause mandatory modifications. A onehundred-year-old building can be occupied under the CBC as long as there is not a triggering action that requires modification. Seismic safety of medical facilities follows the stricter requirements of the Office of Statewide Health Planning and Development (OSHPD). In the wake of the Northridge earthquake, legislation (SB 1953) was introduced to require existing hospitals to be evaluated and meet stricter seismic safety requirements within defined deadlines. The University is in the process of updating the medical centers status regarding compliance with SB 1953 as amended. Seismic Retrofit Approaches and University Progress Generally, seismic upgrades to existing buildings consist initially of structural system modifications specific to each building, followed by any additional code upgrades that are triggered by the structural work (fire and life safety, Americans with Disabilities Act); desired
4 COMMITTEE ON -4- GB3 upgrades (program improvements, modernization of building systems and energy efficiencies); and repair or restoration of collateral damage caused by the preceding items (ceilings, flooring, doors, finish materials). On a seismic retrofit, the structural components of the seismic upgrade tend to represent no more than one-eighth of the overall hard construction cost for the project. As such, incorporating seismic improvements into the scope of a larger project is generally more economical, and follows the requirements of CBC Chapter 34. The campuses have made significant progress on improving seismic safety of existing facilities that were identified with deficiencies in previous studies, notably assessments shared with the Regents in November As shown in the table below, three of the campuses have completed all required seismic improvements for previously identified structures. Merced is not shown, as all buildings were recently completed under newer building codes, and required no additional evaluation. Campus UC Campuses Completed and Remaining Seismic Correction Work GSF Vacated, Completed, or Underway Progress since September 2008 (GSF) Remaining GSF to Rehabilitate Sep-2008 Sep-2011 Berkeley 4,319,272 4,924, ,969 1,632,972 Davis 2,096,120 2,322, , ,432 Irvine 1,886,097 1,930,887 44,790 0 Los Angeles 4,790,245 6,489,020 1,698,775 1,043,065 Riverside 1,734,178 1,734, ,201 San Diego 1,447,058 1,454,340 7,282 0 San Francisco 1,127,797 1,147,129 19, ,016 Santa Barbara 1,694,063 1,721,063 27, ,679 Santa Cruz 1,043,995 1,064,276 20,281 0 TOTAL 20,138,825 22,787,228 2,648,403 3,268,365
5 COMMITTEE ON -5- GB3 Current and Future Seismic Retrofit Activity While the University has made significant progress reducing risk related to seismic issues, there is still a remaining backlog. The challenges facing the University include: The vast inventory of space (122M gross square feet) located throughout the state; The overall age of many buildings (more than 50 years old); older structural systems, details, and connections now requiring additional resistance and support to meet newer codes; Many buildings with very large square footage (more difficult to reinforce); and, The imperative for continued occupancy to provide needed academic research, and support programs. Resolution of the seismic exposure problems posed by existing buildings is complicated and constrained by these issues and made more difficult by the limited funding available from the State for State-supported capital projects. Several campuses have major projects currently in process to improve seismic safety. Some of the more notable and larger projects include: UC Campuses Examples of Seismic Mitigation Projects in Process Campus Project Cost (000s) Fund Source Berkeley Berkeley Art Museum Replacement (adjusted budget) $98,029 Non-state Cal Memorial Stadium Renovation $321,000 Non-state Eshelman Hall Replacement (Lower Sproul) $193,000 Non-state Greek Theater Renovation $9,350 Non-state Campbell Hall Seismic Replacement $71,605 State Tolman Hall Seismic Replacement $196,450 State Los Angeles Center for Health Sciences, South Tower Seismic Renovation $219,902 State Santa Monica Medical Center Replacement and Demolition $572,900 State San Diego University House Seismic Renovation $10,504 Non-state SUBTOTAL $1,692,740 Note: Cost represents entire cost of renovation inclusive of seismic improvements to mitigate this risk Several seismic renovation projects were proposed for State support in fiscal years 2011/12 and 2012/13. California s economic conditions have resulted in no new general obligation bonds approved since November 2006, with the consequence of greatly reduced State funding for University capital projects, much less for seismic rehabilitation projects. Several projects planned for seismic upgrade in the near future have been indefinitely delayed. Subsequently, numerous buildings slated for seismic rehabilitation, demolition, or vacation of occupancy may be unable to meet previously established dates for seismic improvements and thereby preclude meeting the campus-stated occupancy plans for the high seismic hazard buildings. The University will continue to pursue state funding for these projects.
6 COMMITTEE ON -6- GB3 A number of campuses, particularly Davis and San Francisco, have undertaken renewed efforts to survey and evaluate buildings of concern in the existing inventory. These may result in additional buildings being designated for mitigation of seismic hazards. Conclusion The University has achieved significant progress in addressing its stock of seismically deficient buildings, and has a large volume of retrofit projects in design and construction. The University s near-term focus will be to continue to secure funding for structures included in the interim use plans. Interim use plans will continue to be monitored for compliance with the Seismic Safety Policy, and revised as needed in light of the developing body of knowledge regarding seismic risk and evaluation. These are the key elements in the University s seismic risk management program, and when coupled with the University Policy requirements for leasing and purchasing properties, and the CBC requirement for modification of University facilities not on the highest priority list when they are proposed for other modifications, we believe that we have a prudent and comprehensive program of managing our seismic risk with few if any peers.
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